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Waitematā Local Board
16 April 2024
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Downtown
West, urban realm and transport outcomes
File No.: CP2024/03743
Te take mō te
pūrongo
Purpose of the report
1. To
seek feedback from the Local Board on the next steps
associated with the regeneration of the Lower Hobson/Quay/Customs Street area
(Downtown West), in alignment with redevelopment of the Downtown Carpark site.
2. To endorse the draft recommendations on development of the Downtown
West – Urban Realm and Transport Outcomes.
Whakarāpopototanga matua
Executive summary
3. With
the sale of the Downtown Carpark (DTCP) confirmed and the development agreement
executed, the Council group is now turning its focus to securing funding for
the public good investment in ‘Downtown West’ as envisaged
in the City Centre Masterplan (CCMP).
4. As
per the Governing Body resolution, staff will provide councillors with options
for this investment to inform a decision on funding through the Long-term Plan
(LTP) process.
5. This potentially includes Lower Hobson Street flyover removal,
Custom Street bus improvements (part of City Centre Bus Plan), road network and
bus upgrades and potential future public space in the Sturdee Street area.
6. The
proposed regeneration of Downtown West forms an important part of the City
Centre Bus Plan. Removing the Lower Hobson Street Flyover creates space to
optimise transport outcomes and create an area that is an attractive place to
live, as well as connecting the city centre to the rest of the waterfront.
7. Working
in collaboration with the developer, there is an opportunity to dig once,
minimise disruption and optimise investment by aligning with the redevelopment
of the Downtown Carpark site.
8. Traffic
using the flyover has halved since 2019. Technical work has confirmed that
local access to the area, along with the ability to get across town by car and
access the motorway network, will still be possible with its removal.
9. Given
the council group’s constrained funding environment, it is recommended
that existing funding included within the draft LTP is prioritised, to deliver
the key transport and streetscape outcomes, including removal of the flyover.
New funding for further urban realm enhancements to the Sturdee Street public
space can be deferred to a later time.
Ngā tūtohunga
Recommendation/s
That the Waitematā Local
Board:
a) endorse the delivery of key transport and streetscape outcomes in
Downtown West, including removal of the flyover and associated street, network
and bus facility upgrades to Lower Hobson St, Customs St West and Sturdee St.
b) note
that funding for this package of works is included within the draft LTP.
c) note that detailed design will come back to the local board,
including the layout and operation of the proposed bus facilities, changes to
the local street network and urban design and heritage opportunities.
d) endorse the recommendation that a decision on funding of further
urban realm enhancements to the Sturdee Street public space be deferred to a
future Long-term Plan process.
Horopaki
Context
10. There
has been an extensive decision-making process regarding the redevelopment of
the Downtown Carpark and wider outcomes that are to be achieved in line with
its redevelopment.
11. The
sale of the site for redevelopment was approved by the Finance and Performance
Committee in December 2020, subject to a set of outcomes that was finalised by
the Planning Committee in June 2021.
12. The
Planning Committee approved both strategic transport and wider outcomes aligned
with the CCMP for the DTCP site. The wider strategic outcomes were in respect
to land use, urban form and quality design, movement and access, environmental
and social responsibility, and Māori opportunities.
13. Following
confirmation of the resolutions at the November 2023 council Governing Body
meeting Resolution number GB/2023/229,
Eke Panuku, in consultation with the Auckland Transport Board, executed the
development agreement for the DTCP. This included the removal of the
multi-modal/micro-mobility facility as part of the agreed transport outcomes
required as part of the carpark sale.
14. Further, the governing body confirmed that funding the transport and
public realm outcomes to be achieved as part of the sale of the carpark will
form part of the council’s Long-Term Plan (LTP) 2024-2034 process.
15. The
decision on whether to fund these projects will be made by the council’s
governing body in May 2024. However, given the transformational outcomes that
can be achieved through this work, the local board may wish to provide advice
to the Governing Body to help inform its decision and the desire for this
feedback was reinforced in the Governing Body workshop.
Tātaritanga me ngā
tohutohu
Analysis and advice
16. The
redevelopment of the Downtown Carpark represents a significant opportunity to
continue the regeneration of the central waterfront through the delivery of Transformational
Move 8 of the CCMP. It also delivers on the CCMP 10 Outcomes and wider
transport network outcomes, including the City Centre Bus Plan (Bus Plan).
17. This
precinct is envisioned as a hub for a new human-centric environment,
prioritising pedestrian and public transport outcomes for the city. This aligns
with the city centre’s transport vision, Access for Everyone (A4E) and
the transport emissions reduction plan (TERP).
18. This
requires the council group to deliver on integrated movement, access and place
outcomes in partnership with the redevelopment of the carpark site. The
proposed scope of these transport and public realm outcomes includes:
· Lower
Hobson Street Flyover removal
· Road, street and bus upgrades - includes the provision of:
o Network changes
o Street enhancements
o On-street bus facilities
· Custom Street bus improvements
· Sturdee Street
public space
19. Removal
of tthe flyover provides benefits from an urban realm, transport, economic and
cultural perspective. It opens up space and also presents an exciting
opportunity for a new kind of public space that celebrates the rich history of
Tāmaki Makaurau, revealing the historic foreshore, seawall, and the narratives
within these spaces.
Transport outcomes
20. The proposed
regeneration of Downtown West forms an important part of the Bus Plan, a plan focused on enhancing access for people who live, work, play
and learn in the city centre.
21. The
Bus Plan proposes a new bus network for Downtown. Future facilities proposed
for Downtown West, as part of this plan, include bus layovers andbus priority
lanes. Future considerations include provision of bus charging facilities in
Sturdee St.
22. Provision
of sufficient bus layover in the Downtown West area enables the future bus
network to operate as planned. This kerbside layover space, combined with the
proposed bus priority lanes, will ensure reliable and efficient bus services
and remove the need for bus circulation, stops and layover space elsewhere in
Downtown e.g. Commerce St north and south.
23. Removing
the Lower Hobson Street Flyover creates space to optimise transport outcomes
and create an area that is an attractive place to live, as well as connecting
the city centre to the rest of the waterfront. It is also
important to note that under the Bus Plan proposals, buses will no longer need
to use the flyover.
24. The
proposed regeneration of Downtown West will help to deliver capacity, network,
and circulation benefits to accommodate future growth in bus demand. It will
create a more operationally efficient bus network, as well as significantly
enhancing customer experience through a more legible and consolidated transport
hub.
25. An
additional benefit of the creation of a consolidated transport hub is that it
reduces the need for bus layover elsewhere in the city centre.
26. The
redevelopment of the Downtown Carpark will remove a key traffic generator in
the area and supports making Downtown West a destination. It also allows the
street layout to be re-configured to provide more space, connectivity and
amenity for walking, cycling and local traffic, in line with the A4E vision for
the area.
27. In
addition to improved outcomes for buses, changes to the street network will
focus on enhancing circulation and access for local traffic through making the
one-way sections of Sturdee St, Customs St West and Fanshawe St two-way. This
means that movements to the area for private vehicles will be prioritised, however
through movements utilising these streets will still be possible..
28. We
understand there are concerns around the impact of removing the flyover.
Traffic using the flyover has halved since 2019. Technical work has confirmed
that local access to the area, along with the ability to get across town by car
and access the motorway network, will still be possible with its removal.
29. While
it is important to retain the choice to drive, it is also important to increase
the capacity of the network to cater for many thousands more people via bus.
Urban realm outcomes
30. Downtown
West plays a critical role in realising transformational
move 8 of the City Centre Masterplan - The Harbour Edge Stitch. Sitting as
the missing link in the 'Harbour Edge Stitch', Downtown West holds the key to
connecting Wynyard Quarter and the Viaduct to the west with Commercial Bay and
Britomart to the east. Intersecting this waterfront stitch is the CCMP’s
vision for a laneway circuit, creating a strong axis of active modes along
Federal Street, linking midtown to the waterfront.
31. The
redevelopment of the Downtown Carpark into a thriving commercial, retail and
residential hub, which will reportedly accommodate over 7000 people, will
fundamentally change this area into a new destination space. To make the most
of this opportunity, the public realm needs to respond. We have an opportunity
to enhance the way people experience Downtown West, transforming it from a
space to quickly move through, to a unique and special place for all, to visit
and enjoy.
32. The
removal of the flyover is the first and major step in enhancing the public
realm in Downtown West, enabling the reorganization of the streets and the
creation of a place for people. This key move enhances connectivity, introduces
a sense of openness and expands the usable area. Currently covering a quarter
of the site, the removal of the two flyovers dramatically increases the amount
of sunlight into the area, improves sight lines and wayfinding, contributing to
a safer, welcoming environment. Our heritage buildings in the area will be
easier to see and appreciate.
33. The
planned Downtown West works includes streetscape enhancements to Lower Hobson,
Customs and Sturdee Streets. When combined with the high-quality internal
laneways through the new mixed-use downtown precinct, this will improve
connections to the Viaduct, the Waterfront and across the Downtown area.
34. This
development of the Sturdee Street Public Space provides an opportunity to:
· Repurpose over
3000m² of highly valuable land, already in council ownership, as public
space for people, to support the growing population in the city centre.
· Create a much better
connection with Federal Street, one of our important laneways on the laneway
circuit, supporting its ongoing refresh and where there are several sites ready
to develop.
· Create a better
setting to the Tepid Baths, one of our important heritage buildings and
cultural and recreational assets.
· Reveal the historic
water’s edge – the wall along Sturdee Street follows the original
cliff line and provides an opportunity to acknowledge the significant cultural
and heritage importance of the area.
35. The
development of the Sturdee Street public space is anticipated to generate
significant urban realm enhancements to the area. Given the council
group’s constrained funding environment however, we believe that the most
important urban realm outcomes to prioritise are those delivered through the
transport package of works, including the removal of the Lower Hobson St
Flyover.
36. It
is therefore recommended that funding of further urban realm enhancements to
the Sturdee Street public space be deferred to a future Long-term Plan
process.
37. We
instead propose to take a phased approach to development of the Sturdee Street
public space, consisting of making good of the site following removal of the
flyover (minimum viable product) with the full development to occur at a later
point in time. This phased approach will enable us to define the best use and
design of this space as the area changes.
Minimising impacts
38. There
is an opportunity to dig once, minimise disruption and leverage investment by
doing this work in alignment with the private developer Precinct Properties,
which has committed to invest $1.5b into the site.
39. Development
and construction come hand in hand with disruption, which the city centre has
experienced plenty of over the past decade or more. By addressing disruptions
as part of a comprehensive package of works there is an ability to work with
local businesses, residents, and key stakeholders to mitigate the prolonged
inconvenience of construction and transport network changes.
40. The
council group is committed to minimising impacts to network users and people
working, living and visiting the area through the construction phase. This can
in part be achieved through taking a “network readiness” approach
based around the philosophy of not making changes until a suitable alternative
is in place. This includes not making changes to the transport network until
enhancements to key public transport corridors currently underway have been completed
and are operational.
41. The
Council group will also take learnings on what worked well and what
didn’t in terms of disruption management from past projects in the
downtown area and current projects in Midtown and Karanga-a-hape.
Basis of the recommendation
42. We
appreciate that there a number of competing demands and viewpoints when it
comes to the regeneration of this area. It’s important that we are clear
on the key elements underpinning the recommendation.
43. The
sale and redevelopment of the downtown carpark is a decision that has already
been made and executed. The development is anticipated to begin approximately
2026 and may take 7-10 years. The endorsement we are seeking is therefore
focused on how we make the most of the opportunity that this city-shaping
redevelopment offers the city centre.
44. The
removal of the Lower Hobson Street flyover is the single biggest enabler for
the regeneration of Downtown West. It creates space to deliver several
transport and urban realm benefits, as well as future economic
and cultural prosperity forthe area.
45. The
proposed transport projects, including removal of the flyover, are part of a
package of work which delivers on the council group’s access strategy for
the city centre. Splitting up these works undermines the business case.
46. Funding
to deliver the key transport and streetscape outcomes is not new funding and is
already within the draft LTP.
47. Should
funding for the substantive works be removed from the LTP, the opportunity to
align disruption timings is lost. Council risks resulting changes to the
detailed design of the carpark site’s redevelopment including the
potential of reorienting inwards and including a reduction in capacity for
residents.
48. The
council group’s constrained funding environment is a key consideration.
The Sturdee Street Public Space would require new funding through the LTP
process. This project represents an exciting opportunity to develop the
historically significant Sturdee St area. However, given council’s
constrained funding environment, we do not think this can be a priority for now
and should be deferred to a future LTP process.
49. Assuming
the Sturdee Street public space is deferred, we would still need to allow some
funding to make good.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
50. Climate
impacts will be assessed through the next stages of programme development,
including through design development.
51. The
redevelopment of Quay Street and the upgrade of the Quay St Seawall, between
2018-2021, took into account sea level rise considerations.
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
52. The
redevelopment of the Downtown Carpark will have operating and financial
implications for Auckland Transport and Auckland Council. These were taken
account of in the decision to proceed with the redevelopment.
53. Eke
Panuku is leading the redevelopment partnership for the carpark site and the
wider regeneration of the area as city centre lead agency, working closely
together with Auckland Transport for delivery.
54. The
Eke Panuku Board has oversight of this project as Lead Agency for the city
centre and works in consultation with the Auckland Transport Board.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
55. Following
the Finance and Performance Committee’s approval of the sale and
redevelopment of the site in December 2020, workshops were held with the
Waitematā Local Board, Heart of the City, the Auckland City Centre
Advisory Board (precursor to the City Centre Advisory Panel) and the Wynyard
Quarter Transport Management Association (WQTMA) in early 2021. Feedback on the
strategic outcomes for the redevelopment of the site was gathered and included
in the 3 June 2021 Planning Committee business report (CP2021/07335).
56. The
City Centre Advisory Panel has advised that it would like to provide a formal
position on the proposal to the Governing Body (noting that as per the advisory
panel terms of reference any members with conflicts will not participate in or endorse
a position). It will be providing feedback ahead of the Governing Body meeting
in May.
57. The
Waitematā Local Board had a workshop on Downtown West - Urban Realm and
Transport Outcomes on 9 April 2024. Staff will be seeking its support for the
proposed recommendation to the Governing Body.
58. There
will be multiple opportunities for the community to be engaged through the
optioneering and design development phase to provide feedback and advice to
help shape and inform the final outcomes.
Tauākī whakaaweawe
Māori
Māori impact statement
59. The
council required Māori outcomes from the redevelopment as part of the
authorising delegations. This included early engagement with mana whenua to
explore the potential for incorporation and expression of Māori identity
and values including Te Aranga design principles.
60. Mana
whenua have been informed of the redevelopment proposal through the Eke Panuku
Mana Whenua Forum. Further engagement will occur during the development and
detailed design of the area. Ngāti Whātua Ōrākei is a
partner with Precinct Properties in this project.
61. Provision
has been made in the development agreement for the development partner to
provide employment and sub-contract procurement opportunities. This may include
sourcing of aspects of the project from mana whenua authorities or Māori
businesses.
Ngā ritenga
ā-pūtea
Financial implications
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Budget
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Existing/New
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Recommended
funding package for LTP 2024-34
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$53.0m
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Lower Hobson Street Flyover
removal
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$5.5m
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Existing
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Road, street and bus upgrades -
includes the provision of:
• Network
changes
• Street
enhancements
• On-street
bus facilities
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$32.5m
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Existing
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Custom Street bus
improvements
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$10.0m
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Existing
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Make Good: Sturdee Street public
space
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$5.0m
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New
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Future
opportunity (to be considered later)
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$30.0m
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Sturdee Street public
space (full delivery)
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$30.0m
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New
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62. The
decision on whether to fund the progression of these projects will be made by
the council’s governing body in May 2024. The governing body will be
considering the funding of these suite of projects within the context of the
council’s current financial situation, priorities against other regional
and city centre projects, and the reprioritisation of the Regional Land
Transport Plan (RLTP) in response to the loss of regional fuel tax income.
63. Funding
to deliver the key transport and streetscape outcomes is already within the
draft LTP. This includes Lower Hobson Street Flyover removal; Custom Street bus
improvements (part of City Centre Bus Plan); on street bus facilities; network
changes to facilitate removal of the flyover and streetscape enhancements.
64. The
Sturdee Street public space is currently unfunded and would require additional
funding through the LTP process. Given the council’s constrained funding
environment, it is not proposed that delivery of the Sturdee Street public
space is a priority for now. An allowance would, however, need to be made for
make good (paving, planting, furniture)
65. There
is no City Centre Targeted Rate allocated to these projects.
66. Staff
are recommending that the governing body support funding for key transport and
streetscape outcomes. These include the removal of the flyover, but further
urban realm enhancements to the Sturdee Street public space are deferred to a
future LTP process.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
67. The
sale and redevelopment of the carpark has always been envisaged as part of an
integrated transformation of the area. Decisions to date have been made on this
basis.
68. The
development is designed around the integration of public realm and transport
outcomes. This was the basis of the bid. There is the potential that the
developer would need to revisit its design should the proposed public sector
investment not go ahead, resulting in compromised outcomes to what was
originally intended.
69. Through
alignment of our works, we can generate efficiencies and minimise disruption.
If we defer the proposed works, we risk re-work, escalating cost and extended
disruption when we come to deliver these outcomes in the future.
70. In
successful urban regeneration, public and private sector investment go hand in
hand, and aligning investment (or not) sends a strong message around
partnership to potential future investors. There is a future investment and
reputational risk associated with this decision.
Ngā koringa ā-muri
Next steps
71. The
governance runway for this funding decision includes:
· 3 April 2024 – Governing body workshop (complete)
· 9 April 2024 – Waitematā Local Board workshop (complete)
· 10 April 2024 - City Centre Advisory Panel workshop (complete)
· 16 April 2024 - Waitematā Local Board business meeting
· 29 April 2024 - City Centre Advisory Panel business meeting
· 2 May 2024 – Governing body meeting.
Ngā tāpirihanga
Attachments
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No.
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Title
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Page
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a⇩
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Downtown West - Urban Realm and Transport Outcomes
– presentation
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13
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Ngā kaihaina
Signatories
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Authors
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Eric van Essen, Programme Director,
City Centre Delivery, Auckland Transport
Simon Oddie, Priority Location
Director: City Centre, Eke Panuku
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Authorisers
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Ian Wheeler –
Chief Operating Officer, Eke Panuku
David Rankin – Chief Executive, Eke Panuku
Glenn Boyd - Local Area Manager
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